KOGELBERG BIOSPHERE RESERVE FRAMEWORK PLAN

Transcription

1 KOGELBERG BIOSPHERE RESERVE FRAMEWORK PLAN

2 KOGELBERG BIOSPHERE RESERVE FRAMEWORK PLAN KOGELBERG BIOSPHERE RESERVE COMPANY

3 TABLE OF CONTENTS CHAPTER 1: INTRODUCTION Role of Biosphere Reserves Role of Biosphere Reserves in Planning Need for a Framework Plan Appointment Purpose of the Framework Plan Framework Plan Report Study Area Institutional Arrangements Report Structure Framework Plan Limitations Limits of Liability and Warranty Disclaimer... 6 CHAPTER 2: ISSUES, INFORMANTS AND INTERVENTIONS... 7 CHAPTER 3: COMPILATION OF THE FRAMEWORK PLAN Planning Approach Planning Methodology Spatial Informants Selecting and Delineating Spatial Planning Categories CHAPTER 4: THE FRAMEWORK PLAN CHAPTER 5: APPLICATION OF THE FRAMEWORK PLAN Rural Land Uses and Managing of Rural Land Use Change Land Use Management Priority Areas Rural Management Guidelines and Principles Limitations of the SPC Map CHAPTER 6: IMPLEMENTATION STRATEGY Implementation Strategy Sub-products and Programmes Participation and Sub-product and Programme Considerations Proposed Sub-Products and Programmes CHAPTER 7: CONSULTATION ON THE FRAMEWORK PLAN Scope of Consultation Summary of Comment Received Participatory Process Assessment CHAPTER 8: WAY FORWARD References List of Tables Table 1: KBR SPCs Table 2: Appropriate Land Uses and Activities in KBR SPCs Table 3: Key Landscape Connectivity Areas Identified in the KBR Table 4: KBR Proposed Sub-Products and Programmes List of Diagrams Diagram 1: Socio-ecological Concept Diagram 2: Framework Plan Compilation Process Diagram 3: KBR Socio-economic Context Diagram 4: KBR Ecological Context Diagram 5: KBR Socio-ecological Spatial Concept Diagram 6: Aligning CBAs and SPCs List of Figures Figure 1: 1998 KBR Spatial Plan Figure 2: Planning Domain Figure 3: Framework Plan Figure 4: Land Use Management Priority Areas List of Annexures Annexure A: List of Registered I&APs Annexure B: Record of Consultation Annexure C: Inventory of Rural Development Programmes Kogelberg Biosphere Reserve Framework Plan i

4 ACRONYMS ABET AIDS BEE BGIS BOCMA BR CoCT C.A.P.E CASP CBA CTRU DEA&DP DAFF DBSA DEA DMO DPW DRDLR DWA EIA EMF ESA FP GDP GWUA HDI HIV HPUAL I&AP IDP KBR KBRC KCIMP KOBIO LED LUMS Adult Basic Education and Training Acquired Immune Deficiency Syndrome Black Economic Empowerment Biodiversity GIS Breede-Overberg Catchment Management Agency Biosphere Reserve City of Cape Town Cape Action for People and the Environment Comprehensive Agricultural Support Programme Critical Biodiversity Area Cape Town Routes Unlimited Western Cape Department of Environmental Affairs and Development Planning Department of Agriculture, Forestry and Fisheries Development Bank of Southern Africa Department of Environmental Affairs Destination Marketing Organisation Department of Public Works Department of Rural Development and Land Reform Department of Water Affairs Environmental Impact Assessment Environmental Management Framework Ecological Support Area Framework Plan Gross Domestic Product Groenland Water User Association Historically Disadvantaged Individual Human Immunodeficiency Virus High Potential and Unique Agricultural Land Interested and Affected Party Integrated Development Plan Kogelberg Biosphere Reserve Kogelberg Biosphere Reserve Company Kogelberg Coast Integrated Management Plan Kogelberg Biosphere Association Local Economic Development Land Use Management System MAB MAI MAP MoU MPA MTO NEMBA NTS ODM PAE PSDF RADP RDA S.K.E.P SAFCOL SANBI SAT SATS SBL SDF SETA SMA SMME SPC SPOT TB TMG TWK UNESCO VOC WCG WCRS WWF WWTW Man and the Biosphere Mean Annual Increment Madrid Action Plan Memorandum of Understanding Marine Protected Area Mountain to Ocean National Environmental Management: Biodiversity Act; (Act 57 of 2003) National Tourism Strategy Overberg District Municipality Protected Area Expansion Provincial Spatial Development Framework Recapitalisation and Development Programme Rural Development Area Succulent Karoo Eco-system Programme South African Forestry Company South African National Botanical Institute South African Tourism South African Transport Services Setback Line Spatial Development Framework Sector Education and Training Authority Special Management Area Small, Micro and Medium Enterprise Spatial Planning Category Système Probatoire d Observation de la Terre Tuberculosis Table Mountain Group Theewaterskloof United Nations Educational, Scientific and Cultural Organisation Dutch East-India Company Western Cape Government Western Cape Reconciliation Strategy World Wildlife Fund Waste Water Treatment Works Kogelberg Biosphere Reserve Framework Plan ii

5 PREFACE The Framework Plan responds to a need identified in the Kogelberg Biosphere Reserve s Strategic Management Framework compiled during 2006/2007, namely to develop a spatial conservation and growth plan for the biosphere in order to; Provide a useful model and starting point for efficient bioregional planning and management; Give spatial effect to UNESCO s Man and Biosphere (MAB) Programme, and identify appropriate places to promote the achievement of sustainable development; and Put in place a planning tool to reconcile and integrate the conflicting interests and pressures that characterise land use planning, specifically in rural areas. Accordingly, the Kogelberg Biosphere Reserve Company identified the Framework Plan as an instrument to facilitate coherent planning and land use management in terms of the principles of sustainable development and to optimize the implementation of the three global functions of biosphere reserves, namely conservation, socio-economic development and logistical support. The engaging of a wide spectrum of policy makers, planners and communities in the preparation of the Framework Plan has highlighted willingness to embrace the socio-ecological spatial concept put forward as a sustainable development model to link biodiversity conservation and socio-economic development for human well-being. for the Kogelberg Biosphere Reserve Company to partner with its statutory and social partners in its implementation, including the following: The Framework Plan to serve as input to the revision of the Integrated Development Plans and sector plans of participating municipalities, particularly the rural component of their Spatial Development Frameworks and Environmental Management Frameworks. Municipalities to apply the Framework Plan guidelines in the adjudication of applications for rural land-use change. The Framework Plan data and guidelines to positively inform the location, scale and form of private and public developments. The Kogelberg Biosphere Reserve Company and its partners to pursue and implement projects and programmes put forward in the Framework Plan in order to demonstrate the biosphere s sustainable development model, particularly those aspects aimed at addressing the livelihoods of communities, strengthening the conservation effort, addressing climate change and unlocking the green economy. In recognition of the role of its statutory and social partners in the compilation of the Framework Plan, the Kogelberg Biosphere Reserve Company extends a sincere invitation for their continued partnership during the implementation of the Framework Plan and other Kogelberg Biosphere Reserve initiatives and programmes. The Framework Plan, together with its supporting status quo data base, was approved by the Board of Directors of the Kogelberg Biosphere Reserve Company in August Critical to the successful mainstreaming of the sustainable development approach put forward in the Framework Plan is the need Kogelberg Biosphere Reserve Framework Plan Songvei Cluver Chairperson, KBRC Board iii

6 Chapter 1: INTRODUCTION cultural conservation and sustainable development objectives while improving human well-being. 1.1 Role of Biosphere Reserves The Madrid Action Plan (MAP) adopted by the 3 rd World Congress of Biosphere Reserves in February 2008 emphasized that the Biosphere Reserve (BR) concept has proven its value beyond protected areas and is increasingly being embraced by a wide variety of policy makers, planners and communities to link biodiversity conservation and socio-economic development for human well-being, with a focus on developing models for global, national and local sustainability. Of the 531 biosphere reserve sites within 105 countries worldwide, five BRs in South Africa are currently registered under the MAB Programme, including the Kogelberg Biosphere Reserve. Over the past decade, biosphere reserves in South Africa have evolved as important tools to address a wide range of initiatives, including conservation expansion programmes, integrated development and planning initiatives, fostering stakeholder partnerships and underpinning tourism strategies. 1.2 Role of Biosphere Reserves in Planning The National Biosphere Reserve Workshop held at Bela Bela in Limpopo during May 2008 highlighted that the MAB Programme in South Africa should play a greater role in current national and local government strategies that involve poverty alleviation, environmental sustainability, social upliftment, transformation and economic development. Furthermore, the BR concept is identified as offering a mechanism to secure socio-inclusive environmental management within the framework of sustainable development, a real requirement within a developing country. Accordingly, the Bela Bela Workshop identified that the UNESCO Biosphere Reserve concept is a valuable land management tool to integrate people and the environment in such a manner which supports the country s natural and Biosphere reserves provide a framework for integrated development and management of all land uses in a manner that builds upon and provides the comparative economic advantages of both local and district municipalities. While biosphere reserve zonation principles can assist municipalities in the development of land use models, such principles are often not aligned with municipal Spatial Development Frameworks and Integrated Development Plans, with such shortcoming identified by the National Biosphere Reserve Workshop (2008) as one of the five major challenges facing South African biosphere reserves. Accordingly, such Workshop recommended that: (i) The role of biosphere reserves in the land use management and planning sphere should receive increased promotion; and (ii) Support for biosphere reserves as sustainable development initiatives at local level can serve as a mechanism to assist in the land restitution process and socio-economic development, especially within the rural areas. 1.3 Need for a Framework Plan The need for a Framework Plan (FP) arises from the following: - The Kogelberg Biosphere Reserve (KBR) was registered in December 1998 subsequent to its nomination application for biosphere reserve status being approved by UNESCO in Paris. Supporting such nomination was a spatial plan of the area which denoted the basic biosphere reserve areas, namely core, buffer and transitional zones (refer Figure 1). While such plan addressed the nomination requirements, the Kogelberg Strategic Management Framework completed in 2007 identified the need to develop a spatial conservation and growth plan given that biosphere reserves: o Provide a useful model and starting point for efficient bioregional planning and management; Kogelberg Biosphere Reserve Framework Plan 1

7 o give physical effect to UNESCO s Man and Biosphere (MAB) Programme, serving as specific places to promote the achievement of sustainable development; and o are designed as tools for reconciling and integrating the conflicting interests and pressures that characterize land use planning. Accordingly, the Kogelberg Biosphere Reserve Company (KBRC) has identified a FP to facilitate coherent planning and land use management in terms of the principles of sustainable development and to optimize the implementation of the three global functions of biosphere reserves, namely conservation, socioeconomic development and logistical support. - The need to update and refine the original spatial plan submitted with the biosphere reserve s nomination in order to incorporate new information, align with the latest policies, programmes and action plans of provincial and national spheres of government, be supportive of international programmes and protocols, and integrate the biosphere reserve into the municipal land use planning system. 1.4 Appointment In order to address such planning requirement, the KBRC, subsequent to a proposal call, appointed service providers ikapa Enviroplan (a Setplan/DJ Environmental Consultants Joint Venture) and ECOSOL-GIS to prepare a Framework Plan for the Kogelberg Biosphere Reserve. 1.5 Purpose of the Framework Plan The purpose of the FP is to support and endorse the objectives of the DEA&DP, the KBR and participating municipalities through the following: - Building on and taking forward the bioregional planning approach that the Western Cape has adopted in its Provincial Spatial Development Framework (PSDF). - - Consolidating, refining and incorporating, where appropriate, informants from the finescale systematic conservation assessments for the area (Critical Biodiversity Areas Map of the Overberg; City of Cape Town Bionet) in spatial planning for KBR. - Demonstrating the application of the PSDF s system of Spatial Planning Categories in the rural landscape. - Promoting awareness of the KBR by publicising how and where in the landscape socio-economic development can be reconciled with conservation. - Building relationships with the KBR s partners (i.e. land owners, civil society, business, statutory authorities) by demonstrating how and where to uplift impoverished communities and rehabilitate degraded landscapes. - Identifying projects and programmes that will contribute to establishing the KBR as a model of sustainable development. - Logistically supporting municipalities by : o Adding value to the SDFs of local municipalities by providing guidance on how the rural component of their SDFs should align conservation of the biodiversity network and rural development. o Assisting municipalities to make informed decisions in their management of pressure for land use change in the rural landscape. - Addressing and achieving PSDF rural objectives through: o Supporting land reform. o Conserving and strengthening the sense of place of important, natural, cultural and productive landscapes, artefacts and buildings. Kogelberg Biosphere Reserve Framework Plan 2

8 o Protecting biodiversity and agricultural resources. - Achieving the goals and objectives of the KBR, including promoting conservation, achieving sustainable development, fostering stakeholder support, engaging in research and monitoring, promoting and facilitating environmental education and awareness, and achieving the KBR s institutional functioning. In addition, the FP for the KBR provides a starting point for the preparation of a Bioregional Plan, as provided for in the National Environmental Management: Biodiversity Act (Act 10 of 2004) and a Framework Plan as contemplated in the Western Cape Biosphere Reserves Act, 2011 (Act No 6 of 2011) as published for general information on 13 December Framework Plan Report Compilation of the Framework Plan, as outlined in the Kogelberg Strategic Management Framework, is to comprise three distinct but interrelated phases. The first of such phases, namely Phase 1: Analysis, included the conducting of a Status Quo assessment and compilation of a GIS data-base, informed by consultation with key-stakeholders. The outputs of Phase 1 are documented in Kogelberg Biosphere Reserve Framework Plan: Status Quo Report: Report 1509/1.1 January The Framework Plan Report, which details Phases 2 and 3, includes the following: Phase 2: Preparation of a Draft Framework Plan; including: - Interpreting Spatial Planning Categories; - Formulating Spatial Development Guidelines and an Implementation Strategy; - Identifying FP Sub-Projects; - Integrating and Aligning the FP with other Strategic and Sector Plans; and - Consultation on the Draft FP Phase 3: Revision, Submission and Approval of the FP. 1.7 Study Area The extent of the KBR as registered in 1998 is illustrated in Figure 2. Given that the KBR boundary was primarily informed by the spatial plan at the time, such boundary delineation was not fully inclusive of ecological systems and corridors. Accordingly, a planning domain which extends beyond the KBR boundary serves as the study area. Such planning domain includes the Bot River to the east of the KBR and northwards to Van der Stel Pass. Furthermore, the planning domain extends outwards of the KBR boundary in order to identify and highlight existing and potential ecological corridors and linkages, terrestrial and marine interfaces and shared resources which traverse the boundary. Such study area will also serve to inform any possible revision of the designated KBR boundary. The current designated Biosphere Reserve, located some 60km south-east of Cape Town, comprises ± ha or 864km², extending southwards from Gordon s Bay along seventy two kilometres of coastline to the eastern bank of the Bot Estuary. Inland, the KBR extends from Sir Lowry s Pass in the west to Nuweberg, and includes the Groenlandberg and Houhoekberg before extending along the R43 and eastern bank of the Bot Estuary to the coast in the east. The KBR encompasses the urban areas of Rooiels, Pringle Bay, Betty s Bay, Kleinmond and Grabouw, as well as the rural settlements of Nuweberg and Lebanon. The KBR also includes a 3,5 nautical mile wide marine component, although not designated, from south of Gordon s Bay to the eastern boundary of the Rooisand Nature Reserve. 1.8 Institutional Arrangements (i) I&AP Notification and Registration To date, the participatory process has included the following: - Project notification and an invitation to register as an I&AP through a press release (i.e. advertisement) in five local weekly newspapers Kogelberg Biosphere Reserve Framework Plan 3

9 (ii) (iii) (iv) (v) throughout the broader district (i.e. Somerset West, Caledon, Grabouw, Kleinmond and Hermanus) on 18 March and 22 March 2011 respectively, as well as the forwarding of notifications via and facsimile to 193 persons registered on a previous KBRC database. - During the process, 29 persons requested registration as I&AP s, excluding those from municipal and government departments and agencies. - Annexure A lists the registered I&AP s as well as members of municipal, provincial and national government departments and agencies who have participated in structured interviews and meetings. Technical Working Group Such group comprising representatives of the D:EA&DP, CapeNature and the consultant team were tasked with the management and review of the FP preparation. The group met monthly during the 8-month project period. KBRC Board and Management Committee Progress reports and interim presentations were made to the monthly meetings of the Board and Management Committee, who contributed to the input and review of the FP. Structured Meetings Structured meetings and discussions were held with local authorities, provincial and national departments, local agencies and bureau s (refer Status Quo Report, Report No 1509/1.1 dated January 2012). Workshops and Open Days (vi) 1.9 Report Structure - Holding of a single workshop targeting environmental and planning role-players during the compilation of the Status Quo and Framework Plan. - Holding of open days for review of the Status Quo findings and the FP proposals. - Consultation with each municipality (i.e. town planning, environmental and LED divisions) to review the FP proposals. Distribution of Documentation - Distribution of an information sheet to registered I&APs detailing the objectives and methodology for the FP. - Distribution of the Draft Status Quo Report and Draft Framework Plan Report to ninety five key roleplayers for input and comment (refer Chapter 7 and Annexure B for Record of Consultation). The remainder of this report is structured as follows: (i) Chapter 2 puts forward interventions arising from issues and informants identified in the Status Quo Assessment which inform the preparation of the FP. (ii) (iii) Chapter 3 outlines the FP compilation processes, focussing on the planning approach and methodology, the socio-ecological spatial context of the biosphere, and the selection and delineation of spatial planning categories (SPCs). Chapter 4 puts forward the FP which contextualizes the KBR domain within defined and functional landscape units. Kogelberg Biosphere Reserve Framework Plan 4

10 (iv) (v) Chapter 5 details the application of the FP in land use management and the management of priority areas, as well as highlighting the limitations of the FP. Chapter 6 puts forward strategic pre-requisites for the mainstreaming of the FP, as well as sub-products and programmes that will give effect to the implementation of the three global functions of a biosphere, namely conservation, socio-economic development and logistical support, and contribute to establishing the KBR as a model of sustainable development. (iii) (iv) The delineation of the study area is informed by bioregional principles and therefore does not represent a functional spatial planning unit compatible and comparable with existing and standard spatial geographic frameworks (e.g. municipal areas). The study, while taking cognisance of urban areas insofar critical biodiversity areas and ecological corridors, excludes urban settlements, with an emphasis on the rural component of the KBR. (vi) Chapter 7 outlines consultation on the Draft FP, comment and input received on the plan and its consideration and incorporation thereof where applicable. (v) The FP is restricted to the terrestrial component of the KBR. Once finalized, the Kogelberg Coast Integrated Management Plan (KCIMP) zonations will reflect the marine component. (vii) Chapter 8 puts forward concluding recommendations, focussing on achieving FP approval and implementation in partnership with the respective municipalities and other environmental and social partners. Annexures to the main report contain supporting data, including: Annexure A: List of Registered I&APs Annexure B: Record of Consultation Annexure C: Inventory of Rural Development Programmes 1.10 Framework Plan Limitations (i) (ii) Data informants to the FP not being inclusive of primary research. Compiled for the purpose of taking forward the management objectives of the KBR Company, the FP does not purport to be a comprehensive plan nor does it replace the spatial plans of the spheres of government. Rather it seeks to inform them regarding how best to achieve the biosphere reserve s agenda for the achievement of sustainable development. (vi) SPC mapping is landscape-level based (1:7500), necessitating field inspections to confirm or refine SPC delineation. (vii) (viii) (ix) (x) SPC mapping reflected in the FP is not the sole determinant of decision-making, but a strong informant. SPCs are not development proposals and do not confer or take away existing land use rights. Land-use dynamics and finer-scale ground verified biodiversity data availability will require updating on a regular basis. Biosphere reserves in South Africa currently do not have any legal status, with the concept being implemented indirectly through various pieces of legislation or being integral to certain national and provincial policies (e.g. PSDF). However, Provincial Gazette 6936 of 13 December 2011 gave notice that the Premier of the Province of the Western Cape has assented to Western Cape Biosphere Kogelberg Biosphere Reserve Framework Plan 5

11 Reserves Act, 2011 (Act 6 of 2011) and accordingly published such Act for public information. The Act provides for the following: - Facilitate the designation and management of biosphere reserves in the province of the Western Cape. - Regulate land use in such reserves through the compilation of framework plans. - Provide for matters incidental thereto Limits of Liability and Warranty Disclaimer The Kogelberg Biosphere Reserve Company makes no warranty of any kind, expressed or implied, with regards to the data put forward in the FP, and shall not be liable in any event for any incidental or consequential damage resulting from its use. The data remains the sole property of the Kogelberg Biosphere Reserve Company and may only be used for the purpose of a project with the prior written approval of the Kogelberg Biosphere Reserve Company. Kogelberg Biosphere Reserve Framework Plan 6

12 Chapter 2: ISSUES, INFORMANTS AND INTERVENTIONS Issues and informants emanating from the status quo assessment and stakeholder consultation identify the following interventions which the FP and associated KBRC initiatives and programmes need to address: (i) Resource Conservation, specifically the need to: - Improve catchment condition and management given the role of the KBR in local, district and regional water supply, and that catchment condition and water quality are intrinsically linked to biodiversity sustainability. - Facilitate connectivity between natural habitats to ensure and promote ecological functioning, including coastal corridors to accommodate coastal processes and sea-level rise, mountain to sea corridors in response to climate change, and remnant linkage corridors. - Ensure timeous transfer of conservation-worthy portions of ex-forestry land to facilitate conversion prior to degradation of land condition due to alien infestation or non-conforming use. - Promote and ensure landscape protection and retaining integrity of KBR s natural, cultural and working landscapes given that such landscapes inform the sense of place and setting for the natural, agricultural and settlement areas of the KBR. - Address the restoration of the riparian vegetation zones of rivers given the impact of alien infestation, land use and pollution on river morphology and ecology, and water quality. - Safeguard productive agricultural landscapes given the limited agricultural resource and food security threat arising from the fixed agricultural footprint in the Palmiet River valley being fully utilized, no agricultural (ii) opportunities on the coastal terrace and limited agricultural resources in the Bot River valley. - Develop alternative coastal economic drivers (e.g. ecotourism) to ensure marine resource and eco-system recovery and reinstatement. - Assess the scale and location of alien vegetation infestation given its impact on biodiversity programmes. Socio-Economic Development, specifically the need to: - Promote ecological awareness evoked to date, especially amongst lower-income communities, given its scope for further roll-out in resource management programmes. - Exploit potential KBRC municipal partnerships and assistance around LED projects in the green economy. - Facilitate economic integration to address the juxtaposed dual economy characterized by pockets of acute poverty and associated social pathologies, and the wealthy agricultural, tourism and holiday investment sector. - Increase socio-economic development opportunities through spatial optimization and/or reduction in conflict between competing land use activities. - Explore alternative livelihoods given the recent displacement of historical livelihoods (e.g. fisheries, forestry and construction industry). - Provide and facilitate skills training and entrepreneurial development in impoverished communities in order to promote economic entry. Kogelberg Biosphere Reserve Framework Plan 7

13 - Promote recognition of KBR s role in the tourism economy. - Promote access for municipal community-based LED projects and programmes to Protected Areas. - Identify socio-economic opportunities (e.g. land reform, food security, eco-tourism) emanating from the forestry exit reversal strategy given limited scope for such opportunities due to the fixed agricultural footprint in the Palmiet River valley being fully utilized and scarce agricultural resources elsewhere. - Build on the roll-out of land reform in the KBR, notwithstanding the limited availability of agricultural land. (iv) - Address data gaps, including: Alien vegetation mapping Partial heritage and scenic landscape analysis mapping Coastal utilization zones (i.e. KCIMP) Sustainability of natural resource harvesting (i.e. fynbos) Spatial Development, especially the need to: - Be informed by the issues and informants arising from the consultative and assessment process. - Employ the refined CBA mapping and land cover. - Incorporate the revised categorization of Protected Areas. - Facilitate key natural habitat linkage areas. (iii) Logistical Support, specifically the need to: - Align parallel marine and terrestrial planning processes in the KBR. - Address ineffective relationships between the KBRC and municipalities and government departments. - Employ FP as the conduit between KBR zonations and land use management systems of the three municipalities. - Address ecological and spatial anomalies in current KBR designated boundary through boundary rationalization. - Facilitate roll-out of the KBR Strategic Management Framework insofar: Awareness Programme (i.e. branding, signage, publicity) Partnerships - Consider sensitive and scenic landscapes, as well as heritage sites. - Take cognisance of the latest SDF proposals, including land use, nodes and settlements. - Include coastal setbacks for development. - Include key intervention areas such as rural and coastal corridors. - Facilitate external linkages to other biosphere reserves and regional biodiversity corridors. - Identify the need for KBR boundary rationalization. Kogelberg Biosphere Reserve Framework Plan 8

14 Chapter 3 : COMPILATION OF THE FRAMEWORK PLAN Identifying a planning approach as a point of departure, this chapter puts forward the methodology followed in the compilation of the Framework Plan, including developing a spatial concept for the KBR, delineating spatial planning categories within the KBR domain, defining such categories and identifying their purpose. Diagram 1 : Socio-ecological Concept 3.1 Planning Approach Land-use planning is traditionally based very much on a socioeconomic mindset or concept for how landscapes are developed in terms of where the human needs for housing, food production, connectivity (i.e. communication and transport) and economic development are met. These are the primary drivers of how the socio-economic network is located in the landscape. Environmental informants are primarily in the form of physical constraints on development, for example floodlines, steep slopes, soil fertility or aesthetics. Embodied in the biosphere approach to land-use planning, the socio-economic concept is merged with the ecosystem concept in planning. As with the socio-economic concept, the ecological concept is also concerned with meeting biodiversity needs for food, shelter and connectivity. By combining the two concepts in spatial planning, biodiversity values are included along-side and equal to social and economic values, costs and opportunities in determining the location of human development and assessing the suitability of any spatial planning framework (refer Diagram 1). Maintaining the ecological network is a primary spatial planning objective, together with maintaining a cohesive socio-economic network. The demonstration of how ecosystem goods and services (e.g. water, agri-resources, biodiversity) underpin social and economic well-being within the KBR (e.g. tourism, agriproducts) strongly advocates the employment of a socioecological spatial planning approach in compilation of the FP. 3.2 Planning Methodology The methodology followed (refer Diagram 2) included the following sequential steps: (i) Contextualising the KBR within both its district-wide and local context in order to identify external and local informants, and spatial structuring elements. Implicit in this socio-ecological concept is the understanding that maintaining a functional ecological fabric underpins the sustainability of the socio-economic network by continuing to provide the goods and services necessary for human wellbeing. A socio-ecological approach to spatial planning aims to maintain functional societies and functional ecosystems. (ii) Compilation of underlying biodiversity information from finescale systematic conservation assessments for the area (Critical Biodiversity Areas Map of the Overberg; City of Cape Town Bionet). Cross checking and refining the land cover mapping undertaken using 2010 SPOT satellite imagery. Refining the land cover mapping across the domain to ensure consistency in the areas Kogelberg Biosphere Reserve Framework Plan 9

15 (iii) covered by the Overberg District CBA Map and the City of Cape Town Bionet. Categorizing and mapping the formal protected areas and informal conservation network to make sense of existing conflicting and overlapping categories and areas. (vi) (vii) Aligning CBAs with the Western Cape s system of categorising land uses (i.e. Spatial Planning Categories or SPCs). Delineating the rural landscape into appropriate SPCs and translating landscape ecological principles into areas on the ground to further inform such delineation. (iv) (v) Identifying other conservation informants, including key areas, required coastal setback, sensitive landscapes and degraded areas worthy of biodiversity restoration. Incorporating social, economic and ecological spatial planning informants comprising the socio-ecological concept. (viii) Defining SPCs within the KBR domain and identifying their purpose. Diagram 2 further illustrates how the FP (and its SPCs) can inform both regulatory and project land use applications and development proposal formulation within the context of rural land use management and development and its guidelines. Diagram 2: Framework Plan Compilation Process BASE DATA Environmental Resources (i) (ii) (iii) (iv) Critical Biodiversity Areas of the Overberg District Municipality Western Cape Biodiversity Framework City of Cape Town Bionet Boland Mountain Complex Transformation Layers Biodiversity Informants CBAs (aquatic and terrestrial) Ecological Support Areas Other Natural Areas Protected Areas - Formal A and B Reserves - Informal Conservation Network: Stewardship Sites Un-proclaimed Private Nature Reserves Conservancies Framework Plan Spatial Planning Categories (SPCs) - Core 1 - Core 2 - Buffer 1 - Buffer 2 - Intensive Agri - Settlement Definition Purpose Rural Land Use Management and Development OTHER DATA & INFORMANTS Other Conservation Informants - Key Areas - Coastal Setback - Intact Remnant Vegetation - Sensitive Landscapes - Degraded Areas Spatial Context - Socio-economic Concept - Ecological Concept - Socio-ecological Spatial Concept Land Use Guidelines Land Use Application or Development Proposal Formulation - Regulatory - Project Conception Participatory Process KBR RESOURCE DATA BASE Administrative and Cadastral Biodiversity Topography and Coastal Form Water Resources Agricultural Resources Geology and Minerals Land Cover and Land Use Settlement and Infrastructure Heritage and Visual Sensitivity Tourism Socio- Economic Kogelberg Biosphere Reserve Framework Plan 10

16 3.3 Spatial Informants Complementing biodiversity and other conservation informants to the KBR FP are the following spatial informants: Diagram 3 illustrates the socio-economic context of the KBR - Established and relatively fixed agricultural footprint - Recently reduced commercial forestry footprint - Strong district urban node (Grabouw) - An emerging urban node encompassing Hawston, Fisherhaven and Benguela Cove - An emerging industrial node at Bot River - Increasing coastal town and estuary (e.g. Arabella) development, with emerging coastal sprawl - Emerging Rural Development Areas and associated land uses in the Grabouw-Elgin Valley and Bot River valley - Strong road connectivity (N2, R43, R44) and future Winelands N2 Toll Route - Extensive marine resource zone - Existing and emerging water and renewable energy installations, including inter-basin transfer, wind and wave energy generation, pumped storage schemes, water purification, etc. - Vibrant tourism zones and routes - Abutting economic zones, including the Cape Town metropolitan area, Vyeboom-Overberg agricultural area and the Hermanus coastal complex - Fragmented municipal rural management due to municipal boundaries - KBR designated boundary not representing a functional spatial planning unit Diagram 3: KBR Socio-economic Context Diagram 4 illustrates the ecological context of the KBR - Significant extent of Formal Protected Areas and the Informal Conservation Area Network - High proportion of threatened habitats listed under the provisions of NEM Biodiversity Act (especially Critically Endangered and Endangered Habitats) - Large number of threatened plant species - Globally significant number of endemic plant species - Degraded riparian and estuarine ecosystems Kogelberg Biosphere Reserve Framework Plan 11

17 - High presence of transformed and degraded areas, especially in the lowlands - Highly threatened marine ecosystem - Vulnerable and sensitive landscapes, including visually exposed rural valleys and coastal areas - Discontinuity of internal and external biodiversity corridors and linkages, including coastal corridors - Limited cognisance of coastal processes - Significant extent of catchment areas, many in pristine condition - Significant natural, cultural and working landscapes - Identified key biodiversity and connectivity areas - Opportunities to expand the conservation estate and improve connectivity between protected areas (e.g. in forestry release areas) Diagram 4: KBR Ecological Context Diagram 5 illustrates the socio-ecological spatial concept for the KBR - Rationalization of the KBR boundary - Expanding of the conservation estate, through; Restoration of degraded and ex-forestry areas; and Promoting stewardship and conservancies in conservation worthy and key connectivity areas - Fostering and establishing continuity of internal and external biodiversity linkages, including a coastal corridor - Protecting and enhancing riverine corridor and riparian ecological systems - Securing the agricultural footprint and opportunities for land reform and food security - Protecting rural corridors and sensitive inland and coastal landscapes - Establishing a marine protected area, including take and no-take areas - Fixing and implementing a coastal development setback line - Developing a sustainable spatial structure comprising development of district urban and industrial nodes, channelling development to existing coastal and rural settlements, and providing access through appropriate road and rail systems - Restricting coastal and estuary development footprints through infill and densification of urban settlements - Promoting integrated rural development, including natural and working landscapes, establishment of rural development areas comprising agri-based settlements, processing and tourism nodes, and land reform - Supporting tourism zones and routes, including both road and rail - Promoting and establishing the KBR as a district focus, especially regarding environmental awareness - Promoting renewable energy zones through appropriately-sited facilities and zones - Employing common rural land use suitability criteria Kogelberg Biosphere Reserve Framework Plan 12

18 Diagram 5: KBR Socio-ecological Spatial Concept associated spatial development models underpinning such frameworks dictates the need for a set of land use sustainability criteria common to the entire KBR. Such criteria, as embodied in Spatial Planning Categories (SPCs) of a spatial planning categories map such as the KBR FP, provide a tool for all role-players to assess land use suitability and sustainability irrespective of location within the KBR or the spatial development model it comprises. 3.4 Selecting and Delineating Spatial Planning Categories In accordance with the bioregional planning framework that the Western Cape Government has adopted in the PSDF, the KBR was delineated into Spatial Planning Categories (SPCs), with the following informing such SPC selection and delineation. (i) Selection of SPCs The Biosphere Zones or Categories as put forward in the 1998 KBR Spatial Plan (refer Figure 1) included: - Core; sensitive, mostly state-owned land where conservation of biodiversity is the primary function; - Buffer; private and municipal land containing mostly indigenous vegetation and zoned for outdoor recreation; and - Transition; fruit orchards, timber plantations and urban uses Responsibility for effecting the abovementioned spatial interventions required to realize the socio-ecological spatial concept for the KBR vests amongst the main role-players within the KBR (i.e. municipalities, national and provincial departments, agencies, etc.), with the roll-out of such interventions being the product of their respective land use planning and management frameworks. However, the diversity of environmental, social and economic objectives and Recognising the spatial requirements for eco-system functioning and the emerging diversity of land use, the PSDF prescribes that municipalities delineate all land within their jurisdiction into SPCs, with the following categories as a minimum requirement: - Core 1 & 2; - Buffer; - Intensive Agriculture; and - Human Settlement (i.e. as delineated by means of an urban edge). SPCs are not development proposals and do not confer or take away existing land use rights. Rather their Kogelberg Biosphere Reserve Framework Plan 13

19 (ii) function is to provide guidance on what activities are sustainable from a biodiversity perspective in different landscapes and localities. SPC selection for the KBR includes the PSDF prescription, but differentiates between Buffer 1 and Buffer 2, given the need to refine the other natural areas CBA category (refer Delineating and Mapping SPCs). Furthermore, a Road SPC is included given the significant impact of roads (i.e. surface and reserve) on natural areas. Table 1 puts forward the definition and function of the following SPCs selected for the FP. - Core 1 - Core 2 - Buffer 1 - Buffer 2 - Intensive Agriculture - Settlement Delineating and Mapping SPCs The delineation of SPCs is informed primarily by biodiversity patterns and ecological processes as captured in the Critical Biodiversity Areas Map of the Overberg and City of Cape Town Bionet within the KBR, and requires the converting of the CBA categories into SPCs. The following matrix (i.e. Diagram 6) illustrates the relationship between the main CBA categories and the corresponding SPCs, and demonstrates the linear correlation between the CBA categories and the SPCs. However in certain cases, a linear cross-over from CBAs to SPCs is not applicable, given the location of land use activities within or outside of PAs, within or outside of existing or proposed conservancies or Stewardship areas or within sensitive areas (e.g. ESAs). Accordingly, conversions in such cases are informed by the following: - Mountain Catchment Areas Although the entire MCA which includes some plantation and intensive agricultural areas is technically regarded as a Protected Area under NEMPA, in practice for the delineation of land use categories/spcs, it is recognised that such agricultural and plantation areas cannot all be allocated to Core 1. Accordingly the following distinction: Commercial plantations within Mountain Catchment Areas under management of CapeNature (i.e. nature reserves) are categorized as Core 1 Commercial plantations or intensive agricultural activities (e.g. vineyards) within Mountain Catchment Areas not under management of CapeNature are categorized as Intensive Agriculture - Degraded Areas Degraded areas forming part of CBAs are categorized as Core 1 Degraded areas forming part of ESAs are categorized as Core 2, but is restricted to natural ESAs, with transformed ESAs categorized as Intensive Agriculture and delineated as an overlay to avoid further intensification of use - Areas for which no land cover data was available, but which form part of CBAs, are categorized as Core 1 - Distinction between Buffer 1 and Buffer 2 SPCs: - Roads Reserve width of 50.0m Kogelberg Biosphere Reserve Framework Plan 14

20 Buffer 1; Other Natural Areas, comprising: Areas of well-managed extensive grazing Large areas of intact remnants in close proximity of CBAs Areas located seaward of the Coastal Setback Line (i.e. Physical Processes Hazard Setback Line) and outside of settlement areas Fallow or degraded areas worthy of biodiversity restoration (including exforestry areas) Buffer 2; Other Natural Areas, comprising: Areas characterized by a transformed agri-matrix (i.e. heavily impacted by grazing) Agri-support areas/uses Fallow and degraded areas not required for biodiversity restoration All man-made dams - Other considerations in the conversion of CBA categories to SPCs included; landscape patch size to ensure sustainability, connectivity and edge effects or interface (e.g. proximity to settlement). Kogelberg Biosphere Reserve Framework Plan 15

21 Diagram 6: Aligning CBAs and SPCs Chapter 4: The Framework Plan This chapter presents the FP which contextualizes the KBR domain within defined and functional landscape units. Figure 3 depicts the KBR Framework Plan, comprising Core 1, Core 2, Buffer 1, Buffer 2, Intensive Agriculture, Settlement and Road SPCs informed by the compilation and delineation process outlined in Chapter 3. The definition, location, extent and purpose of these SPCs are presented in Table Western Cape PSDF : Rural Land Use Planning and Management Guidelines; WCPG (2009) Kogelberg Biosphere Reserve Framework Plan 16

22 TABLE 1 : KBR SPCs Definition of KBR SPCs CORE 1 AREAS Core 1 Areas are those parts of the rural landscape required to meet biodiversity patterns or ecological processes (i.e. critical biodiversity areas). These include habitats classified as highly irreplaceable, critically endangered, or endangered terrestrial (land), aquatic (rivers, wetlands and estuaries) and marine habitats. These also include areas currently not yet exhibiting high levels of biodiversity loss, but which should be protected and restored in order to ensure biodiversity pattern and ecological process targets/thresholds can be met in the most efficient way possible. These also include essential biological corridors vital to sustain their functionality, but exclude intensive agriculture and the majority of plantations within the Mountain Catchment and Informal Conservation Areas. Three components of the biosphere landscape make up Core 1 Areas: (i) Formal Protected Areas comprising Formal A Reserves, Formal B Reserves, Marine Protected Areas, Mountain Catchment Areas and National Heritage Sites: Formal A Reserves: - Kogelberg State Forest ( Kogelberg Nature Reserve ), including the Lebanon and Highlands areas - Hottentots Holland Protected Area (Nuweberg and Groenlandberg) - Rooisand Nature Reserve - Brodie Link Nature Reserve In terms of the Protected Areas Management Plan currently being compiled for the Kogelberg, all the Formal PAs within the Kogelberg will form part of the Kogelberg Nature Reserve Complex. A similar plan to be compiled for the Hottentots Holland Protected Area will include the conservation areas at Nuweberg and Groenlandberg within the Hottentots Holland Nature Reserve Complex. Purpose of KBR SPCs Designate which parts of the biosphere landscape are of highest conservation importance, and if they are currently protected or not. Informs expansion of the protected area network. Delineates areas that must be maintained in, or restored to, a natural state in order to sustain biodiversity patterns and processes and the functionality of eco-system services. Identify areas of land that could serve as biodiversity offset receiving areas. In combination with Core 2 Areas, they spatially define the core of the biosphere landscape s ecological network. Formal B Reserves: - Hottentots-Holland Mountain Catchment Area - Kleinmond Coast and Mountain Nature Reserve - Penguin Nature Reserve - Steenbras Nature Reserve (currently being proclaimed) Marine Protected Areas: - Betty s Bay MPA Private Mountain Catchment Areas Kogelberg Biosphere Reserve Framework Plan 17

23 National Heritage Sites: - Sea Farm - Barkai - Krabbafontein Definition of KBR SPCs Purpose of KBR SPCs (ii) (iii) Informal Conservation Network comprising: - Contract Nature Reserves and Stewardship Sites - Private Nature Reserves (e.g. Sea Farm Private Nature Reserve, Hoek van-die-berg Private Nature Reserve, Klein Houwhoek, Ruwami and De Rust Nature Reserve) Critical Biodiversity Areas (CBA) Critical Biodiversity Areas (CBA), as identified through a systematic conservation planning process, that have no formal conservation status. These comprise terrestrial or aquatic habitats, remnants or features that must be conserved to meet national biodiversity pattern or process thresholds. Terrestrial CBAs including: - Coastal belt and inland valleys and adjacent pediment slopes extending from Rooiels to Kleinmond - Pediment slopes abutting Kleinmond, the Lamloch valley, Bot River Wetlands and inland hills west of the R43 and Van der Stel Pass Road to north of Bot River - Hawston-Fisherhaven area extending from the coast and between the Bot Estuary and R43 to Benguela Cove - Area east of the R43 and Swart River Road and Babilonstoring, extending inland to the Swart River - Abutting the Bot River, especially between the Bot Estuary and Swart River - Foothills north-east of the Groenlandberg - Foothills between the Kogelberg and Arieskraal, Kogelberg and Applethwaite Dams - Within the Grabouw-Elgin Valley agricultural area, Highlands-Lebanon and Grabouw-Nuweberg forestry areas. CORE 2 AREAS These areas include: Areas currently not yet exhibiting high levels of biodiversity loss, but which should be protected and restored in order to ensure biodiversity pattern and ecological process targets can be met in the most efficient way possible. Ecological Support Areas (ESAs) to Critical Biodiversity Areas (i.e. river reaches within priority CBA subcatchments which prevent degradation of CBAs), that is along the Palmiet and Steenbras Rivers. However, Core 2 only includes the portions of Ecological Support Areas which are intact (i.e. natural ESAs) and not being used for intensive agriculture. Transformed areas are covered by an overlay to indicate their value for ecological processes and the need to avoid intensification of use in these areas. Manage to restore and sustain eco-system functioning, especially ecological processes (i.e. rivers and seep clusters and their respective buffers) in support of wetlands and rivers in Critical Biodiversity Areas. CBA wetland areas, including CBA catchment areas that are within the wetlands at Pringle Bay, Betty s Bay and within the Lamloch corridor. Kogelberg Biosphere Reserve Framework Plan 18

24 Definition of KBR SPCs Purpose of KBR SPCs Coastline and coastal processes between Rooiels and Kleinmond, including: (i) Areas seaward of the Physical Processes Hazard Setback Line in terms of the National Environmental Management: Integrated Coastal Management Act, 2008 (Act 24 of 2008) and the amended Environmental Impact Assessment (EIA) Regulations (2010). (ii) The identified, but not designated, 3km-wide KBR marine zone extending the length of the biosphere s coastline and forming part Agulhas Inshore Bioregion (i.e. Cape Point to Mbashe Mouth). River and ecological corridors (those not classified essential as per Core 1 definition), e.g. along the Bot River, Palmiet River and Klipdrift River. BUFFER 1 AREAS : To restore and maintain ecological processes. Buffer 1 SPC comprises large intact portions and remnants To retain landscape scale biodiversity corridors of natural or near natural vegetation not designated as To strengthen the conservation and extensive CBA or ESA, especially in proximity/adjacent to CBAs agricultural economies through; and/or ESAs. Buffer 1 Areas come forward in the following i. incentivising the consolidation and maintenance of locations: extensive agricultural units; and - Along the interface between intensive agricultural areas ii. broadening the agricultural economic base through and commercial plantations and conservation or CBA farm diversification of use and revenue generation areas (e.g. Bot River valley and Grabouw-Elgin Valley) (e.g. farm tourism) - Seaward of the Coastal Physical Processes / Hazard To buffer Ecological Support Areas which support Setback Line Critical Biodiversity Areas. To enhance biodiversity through innovative The extensive occurrence of CBAs results in the limited agricultural practices (e.g. veld management) and categorization of Buffer 1 areas within farmlands, given the rehabilitation of previously degraded agricultural land. large areas of intact remnants within such pastoral areas To buffer against the impacts of climate change. and the high level of management of such extensive grazing areas Kogelberg Biosphere Reserve Framework Plan 19

25 BUFFER 2 AREAS This category includes areas designated as Other Natural Areas, located in an extensive and/or intensive agriculture matrix (i.e. livestock production) as the dominant land use. Buffer 2 Areas are located mainly within the farmland areas, reflecting areas highly impacted by grazing. Such areas are however limited given the extensive occurrence of CBAs within the pastoral farming areas and high levels of grazing management which reduces the level of impact on such other natural areas. Furthermore, all man-made dams are categorized as Buffer 2 areas. INTENSIVE AGRICULTURE SPCs The Intensive Agriculture SPC comprises a consolidation of the existing and potential intensive agricultural footprint (i.e. homogeneous farming areas made up of cultivated land and production support areas). The Intensive Agriculture SPC includes: Irrigated crop cultivation (annual and perennial) Dry land crop cultivation including tillage of non-irrigated crops (annual and perennial) Commercial forestry areas Manage for sustainable development of current land use in the area. Protect existing agricultural activity (i.e. livestock production) to ensure food security, contribution to the regional economy, maintenance and management of rural areas and contributing to the working agricultural and cultural landscape. Facilitate agricultural diversification and nonagricultural opportunities (e.g. game farming, tourist facilities) and value-adding to the primary product (e.g. olive oil extraction). Accommodate space extensive and nuisance urban uses, and extensive agricultural uses (e.g. waste water treatment plants, piggeries, mushroom growing plants, etc.). Enhance biodiversity through innovative agricultural practices (e.g. veld management). Minimize fragmentation of remaining natural habitats and corridors. Reverse lost biodiversity in order to reinstate buffer zones and corridors. Rehabilitate degraded areas (e.g. agricultural, mining). Consolidating and protecting existing and potential agricultural landscapes. Facilitating sustainable agricultural development, land and agrarian reform, and food security. The predominant Intensive Agriculture areas include: - Central Grabouw-Elgin Valley deciduous and pomme fruit, and viticulture area extending north and south of Grabouw and eastwards to Highlands and Lebanon. - Commercial forestry areas including the Steenbras Plantation, Grabouw-Nuweberg Plantation in the northwest, the Lebanon Plantation in the east and Highlands Plantation in the south-east. - Grain and mixed farming in the Bot River valley, together with emerging floriculture and viticulture. - Areas north of Groenlandberg (i.e. Vyeboom), which include deciduous and pomme fruit production, extending towards Theewaterskloof Dam. Kogelberg Biosphere Reserve Framework Plan 20